This is a tough question not having a reference, and I'm assuming I know what time frame we are talking about. So I'd have to go with Nobles.
High powers like Nobles and Pharaohs were often the ones to have ideas for helping the crops and cities. Like making a flood wall, a better way of harvesting, since the higher powers have the responsibility of all the people, they have to be the ones with the ideas best for the people. The farmers then carry out those orders but are under command of the Nobles.